Tennessee Code Title 54. Highways, Bridges and Ferries § 54-16-109

(a) No commercial enterprise or activity for serving motor vehicle users, other than emergency services for disabled vehicles, shall be authorized or conducted by the commissioner of transportation, any other official or agency of the state, or any political subdivision of the state on property designated as, or acquired for, or in connection with, a controlled-access facility.

(b) The highway authorities of the state, counties, cities and towns as authorized in § 54-16-107 may construct local service roads adjacent to a controlled-access facility in a manner that facilitates the establishment and operation of competitive commercial enterprises for serving motor vehicle users on private property abutting the service roads.